GUIDELINES FOR MUNICIPALITIES STEPPING UP LOCAL ACTION AGAINST HUMAN TRAFFICKING

GUIDELINES FOR MUNICIPALITIES STEPPING UP LOCAL ACTION AGAINST HUMAN TRAFFICKING

Acknowledgements The Council of the Baltic Sea States (CBSS) and the Ministry of Interior of the Republic of Latvia would like to express gratitude to the project partners: the NGO Living for Tomorrow in Estonia, the Association of Local Authorities in Lithuania, the Ministry of Justice and Public Security in Norway, the Ministry of Interior in Poland, and the County Administrative Board of Stockholm in Sweden. A special thank you to the national teams and their leaders involved in the STROM project implementation and to the members of CBSS Task Force against Trafficking in Human Beings (CBSS TF-THB*) for their committed work on the finalisation of the guidelines: Sofie Andersen* (Denmark), Leemet Paulson* & Sirle Blumberg (Estonia), Jari Kähkönen* & Anniina Jokinen (Finland), Nicole Zündorf-Hinte*, Jürgen Thomas* & Philipp Schwertmann (Germany), Lāsma Stabiņa* (Latvia), Reda Sirgedienė* & Aleksandras Tiaškevičius (Lithuania), Jan Austad* (Norway), Aneta Suda* & Ewa Nowacka* (Poland), Nikolay Kalashnikov* & Natalia Zaibert (the Russian Federation) and Karin Bengtson* & Endrit Mujaj (Sweden). The guidelines have been produced with funding from the CBSS Project Facility Fund, the Swedish Institute and the Ministry of Interior of the Republic of Latvia. Table of Contents Introduction 4 Chapter 1. Key principles and standards 9 Chapter 2. Defining trafficking in human beings 12 Chapter 3. Mapping the local trafficking situation 16 Chapter 4. Identification of victims of trafficking 27 Chapter 5. Assisting victims of trafficking 40 Chapter 6. Prevention of trafficking at the local level 52 Summary of main action points 60 References 62 Guidelines for Municipalities Stepping up local action against human trafficking Written by: Anniina Jokinen, Liliana Sorrentino, Stana Buchowska, Vineta Polatside Edited by: Anthony Jay Olsson THE COUNCIL OF THE BALTIC SEA STATES, DECEMBER 2015 THE MINISTRY OF INTERIOR OF THE REPUBLIC OF LATVIA, DECEMBER 2015

Introduction Why we need guidelines? Introduction Human trafficking is a complex phenomenon that is often driven or influenced by social economic, cultural and other factors. Poverty, oppression, lack of social or economic opportunities and dangers from conflict or instability causes a growing number of populations to want to migrate in search of better conditions and possibilities. States of the Baltic Sea Region are all affected by trafficking in one form or another. Every year women, men, girls and boys are trafficked to, through or from the CBSS Region for the purpose of exploitation. Furthermore, the region is subject to constant changes in the patterns of human trafficking and the forms of victimisation. People are trafficked for sexual exploitation, but also for forced labour. A growing number of labour trafficking cases have been identified in the region, mainly in sectors such as agriculture, berry-picking, restaurant work as well as cleaning and construction. In addition, people are exploited in domestic servitude, in forced begging and criminal activity or for organ removal and other purposes, such as identity or benefit fraud. The complex nature of human trafficking and its different forms has an impact on the understanding and awareness of the phenomenon, the identification of victims, assistance offered and on prevention of trafficking in general. These guidelines aim to highlight the key issues that local actors should consider when addressing trafficking in their line of work. The local response to human trafficking should be tailored to the specific situation, trends and groups at risk identified by the local actors. Background - STROM project The Guidelines are the culmination of the project STROM - Strengthening the Role of Municipalities in the Work against Trafficking in Human Beings in the Baltic Sea Region. The STROM Project is implemented jointly by the Ministry of Interior of the Republic of Latvia and the Council of the Baltic Sea States Secretariat Task Force against Trafficking in Human Beings (CBSS TF-THB) in close cooperation with the NGO Living for Tomorrow in Estonia, the Association of Local Authorities in Lithuania, the Ministry of Justice and Public Security in Norway, the Ministry of Interior in Poland, and the County Administrative Board of Stockholm in Sweden. The specific Guidelines for Municipalities were developed building on the main findings, conclusions and impact of the work undertaken in the STROM project. 1 Both internationally and within the Baltic Sea region, much of the work which has been undertaken in relation to human trafficking has involved criminal justice and security activities, including the introduction of new legislation, increased policing efforts, and providing training for law enforcement. In addition, work has been done to support NGOs offering services to victims and to improve cooperation between NGOs and authorities. However, while some of these activities can be seen as preventive in terms of presumed deterrent effects, there has been much less focus on local approaches to reduce the opportunities for traffickers to exploit people, identifying the groups at risk, mapping the extent of problem at the local level and assisting victims of human trafficking. 2 Trafficking in human beings has very specific implications for local communities, cities and municipalities. 3 Recruitment and exploitation take place in local streets and neighbourhoods. Women and men are sexually exploited on the street or in local bars, businesses and hotels. Victims of labour trafficking can be found among domestic workers in private homes, among cleaners cleaning public offices, schools and stores, in local restaurants, fast food outlets, agricultural farms, petrol stations or construction sites. 4 Local authorities are often the first to come into contact with both victims and traffickers. However, local actors in most cases do not have a prominent place in the national and regional strategies against human trafficking. Also capacity, knowledge and resources of local actors in dealing with human trafficking cases differ greatly in the Baltic Sea region. Local actors have many instruments at their disposal that fit the specific circumstances in their localities but which are not often fully utilised. Any suggested measures can and should of course vary according to local context and trafficking situation. The guidelines are evidence-based and focus on the main critical issues identified during the STROM project and the assessment study. The issues and topics related to human trafficking are quite complex and include many dimensions, therefore specific measures concerning child trafficking were excluded from the guidelines. 5 In general, the guidelines call for a mainstreamed gender-sensitive approach in their implementation, yet they do not give gender specific measures. The guidelines build on the utilization of existing structures as far as possible. Introduction 4 5

Aim of the guidelines The general aim of these guidelines is to provide local actors with the knowledge and right tools to strengthen their role in the work against human trafficking and increase the effectiveness of the anti-trafficking actions by ensuring proper and timely victim identification, adequate and sustainable assistance and protection. The specific goals of the guidelines are to: promote victims rights improve awareness of human trafficking among local actors highlight some of the promising practices that have been developed in the region and beyond where municipalities and/or local authorities play a prominent role in addressing trafficking and protecting victims involve local actors in combating human trafficking at the local level by addressing common challenges and providing specific action points to overcome the problems and to improve the counter trafficking measures Target group of the guidelines The target group of the guidelines consists of a large variety of actors and stakeholders at the local level. The guidelines are foreseen to be most relevant for experts and practitioners working in big and medium size cities and/or municipalities where there is at least some level of awareness on human trafficking. Mayors, policy makers and decision-makers in the general city/municipality governance structures and administration, including public procurement officials Top management of sectoral branches, such as social and health services, and the individual employees working in these organisations Officials of municipal police and inspection authorities (labour, tax, rescue services and so forth) Representatives of NGOs, especially migrant rights groups, social service providers, anti-trafficking NGOs, and local migrant community organisations Role of municipalities The main roles of municipalities in combating trafficking in human beings are: To conduct a mapping of the trafficking situation to get good knowledge of the problem at local level, to build a clear analysis of the issues and to formulate a plan to intervene. To detect populations at risk of being trafficked and take a proactive approach to prevent their exploitation and trafficking. Proximity of local actors to trafficked persons and to the places where the exploitation takes place gives them a greater opportunity to recognize the signs of human trafficking and identify victims. Local authorities can play a central role in addressing the immediate and longer term needs of the victims which include the provision of relevant services and helping victims to regain their independent lives. While local authorities in comparison with national/central authorities do not play a major role in prosecution of traffickers, local actors can be first to detect a situation of exploitation and have a role to play in assisting the police in disrupting criminal networks. To work on all aspects of counter trafficking in cooperation with partners from other public administrations, law enforcement, health care organisations, NGOs and private sector organisations. To ensure that local public officials involved in the identification and assistance to victims are aware of their respective roles and responsibilities and are using formal cooperation structures and MoUs where appropriate. To raise awareness of the problem of human trafficking by providing adequate training to local actors and by implementing awareness raising campaigns towards the general public or among vulnerable groups. To incorporate anti-trafficking activities in the wider crime prevention strategies and structures within the city/municipality. To establish and strengthen cooperation and partnerships with other local actors, authorities, civil society, private businesses, trade unions and private sector organisations to address and combat trafficking. Introduction Introduction 6 7

Structure of the guidelines The first chapter of the guidelines illustrates the key principles and standards that apply in the design and implementation of all policies and interventions in addressing trafficking at the local level. There are four key principles which call for a human rights-based approach, unconditional and rights-based victim assistance, evidence-based prevention and multi-disciplinary cooperation. Chapter 2 introduces what trafficking in human beings is and how it is regulated. In addition, example cases of different forms of trafficking are provided to illustrate the many forms of trafficking has taken in the Baltic Sea region. Chapter 3 focuses on mapping out the local trafficking situation and highlights the various questions that municipalities should consider in order to identify local vulnerable groups and risky locations, and to chart the relevant actors and their resources in order to improve local response to trafficking. Knowing the local context and trends is very important when considering the next steps to be taken in identifying victims, providing assistance and preventing human trafficking. 1. Key principles Chapter 4 focuses on identification of victims of trafficking and introduces indicators of trafficking. A large variety of local actors can identify victims when they are given access to and training on how to use indicators of trafficking. It is important for local actors to react immediately and report suspicions further on to appropriate actors in order to ensure proper support and assistance to victims of trafficking and proper investigation of alleged offenders. and standards Introduction 8 Chapter 5 outlines the key issues regarding victim assistance and the different forms of assistance. The chapter highlights the importance of making sure that the support offered meets the individual needs of the victims and that it is offered unconditionally, irrespective of the victims willingness to cooperate with the authorities. Finally, chapter 6 focuses on supporting municipalities in the Baltic Sea region in establishing and strengthening measures to prevent trafficking in human beings and related exploitation. The section puts forward a number of measures that municipalities can take in this regard. Many of the measures proposed could be integrated into local social, economic and crime prevention policies and programmes, such as those related to addressing social exclusion and marginalization, safe migration, integration of migrants, poverty, education, violence against women, and so forth. The provided action points emphasize the need to establish pro-active rather than reactive prevention strategies. Such pro-active policies are more cost effective and save resources in the end. The summary table recaps the main action points for municipalities in order to strengthen their counter trafficking activities as regards mapping of the local situation, identification of victims, provision of assistance as well as prevention of human trafficking. The international framework to address trafficking in human beings is rich and articulated. There are three fundamental instruments, which are particularly relevant in in the Baltic Sea region i.e. the UN Trafficking Protocol 6, the Council of Europe Convention on Action against Trafficking in Human Beings 7 and the EU Anti-Trafficking Directive 8. The guidelines draw upon international law to address trafficking in human beings (THB) to suggest a set of four key principles and standards that should inform the action of municipalities in the work against THB in the Baltic Sea region. Key principles and standards 9

A human rights-based approach Evidence-based prevention Key principles and standards A human rights-based approach should be integrated into all anti-trafficking interventions and guide the action of municipalities and their partners. Trafficking in human beings constitutes a gross violation of human rights, and an offence to the dignity and integrity of victims. It is both a consequence and a cause of human rights violations. Applying a human rights-based approach means that the rights of trafficked persons shall be at the center of all efforts to prevent and combat trafficking and to protect, assist and provide redress to victims. Such an approach shall be gender-sensitive and child-friendly as trafficking affects women, men and girls and boys who may be exploited for a variety of purposes; interventions (e.g. policies, programs, services) therefore should take into account the different needs and rights of women and men, girls and boys and avoid any unintended negative human rights impact (e.g. stigmatization). 9 Such human rights considerations should be integrated into the relevant policies and programs of municipalities, in particular those related to addressing social exclusion and marginalization, poverty, health, education, public order (e.g. measures related to begging or prostitution) and public procurement. Unconditional and rights-based victim assistance Assistance provided to victims should be rights-based and unconditional, i.e. access to support, protection and assistance should not depend on victims willingness or ability to cooperate with law enforcement authorities in investigations or criminal proceedings. 10 The principle of unconditional assistance is explicitly set out in the Council of Europe Convention and in the EU Anti-Trafficking Directive at least for the duration of the reflection/ recovery period. 11 Policies, programmes or other interventions aimed at preventing trafficking in human beings should be based on solid empirical evidence and knowledge of the phenomenon and the way in which it manifests itself on the territory of the municipality. A good territorial analysis that maps out populations at risk, locations where risky situations (might) occur, causes of the phenomenon, needs of populations affected and availability of resources and competences should therefore inform the interventions. Prevention policies at local level should take into account those issues that foster demand that leads to exploitation and trafficking, address factors increasing vulnerability (e.g. measures related to discrimination and inequality) and strengthen the protection of law for those who are vulnerable to victimization, particularly protecting them against discrimination. Multi-disciplinary cooperation Multi-disciplinary cooperation in areas such as human rights, migration, gender, equality, non-discrimination, labour, health, education, social inclusion and security is crucial to effectively prevent trafficking in human beings, protect victims and punish perpetrators. This requires that different sectors of public administration - at local, regional, and national level - systematically work together with civil society organisations, as well as trade unions and businesses, to establish effective ways to collaborate and coordinate their action in the prevention of human trafficking and protection of victims rights on the basis of a shared human-rights approach. 12 Multidisciplinary cooperation should also be developed between public authorities and civil society organisations in countries of origin, transit and destination. Key principles and standards 10 11

According to the Trafficking Protocol (Art. 3a): Trafficking in persons shall mean the recruitment, transportation, transfer, harbouring or receipt of persons, by means of the threat or use of force or other forms of coercion, of abduction, of fraud, of deception, of the abuse of power or of a position of vulnerability or of the giving or receiving of payments or benefits to achieve the consent of a person having control over another person, for the purpose of exploitation. Exploitation shall include, at a minimum, the exploitation of the prostitution of others or other forms of sexual exploitation, forced labour or services, slavery or practices similar to slavery, servitude or the removal of organs. 2. Defining trafficking in human beings Following the UN Palermo Protocol trafficking in persons consists of three elements: the act, the means and the purpose. ACT Recruitment Transport Transfer Harbouring or Receipt of persons MEANS Threat or use of force Coercion Abduction Fraud Deception Abuse of power or vulnerability Giving payments or benefits PURPOSE Exploitation including: Sexual exploitation Forced labour Slavery or similar practices Removal of organs Other types of exploitation Defining trafficking in human beings 12 Trafficking is a serious crime and a gross violation of human rights of a person. Effective action to prevent and combat such a global problem requires a comprehensive international approach in the countries of origin, transit and destination that includes measures to prevent such trafficking, to punish the traffickers and to protect the victims of such trafficking, including by protecting their internationally recognized human rights. 13 Several international instruments govern the regulation of trafficking at the global and European level. The Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children, supplementing the United Nations Convention against Transnational Organized Crime provides the first overarching, international definition of trafficking in human beings. The Protocol has been ratified by all CBSS Member States. Human trafficking is a crime with a comprehensive but complex and multifaceted definition, especially where the exploitation can have many forms such as sexual exploitation, forced labour and removal of organs, but also forced begging and forced criminality can take place. The consent of the victim to the intended exploitation is considered irrelevant when any of the listed means have been used (Art 3b). The Council of Europe Convention on Action against Trafficking in Human Beings of 2005 further highlights the principle that trafficking in human beings constitutes a violation of human rights and an offence to the dignity and integrity of a person. It is a legally binding instrument that aims to prevent trafficking, protect its victims and prosecute the traffickers. The Council of Europe Convention has been signed and ratified by all the CBSS Member States except the Russian Federation. 14 Finally, the at the EU-level EC Directive 2011/36/EU on Preventing and Combating Trafficking in Human Beings and protecting victims was adopted on 21 March 2011. The directive aims to improve the protection for victims of human trafficking and to enhance prevention by strengthening the prosecution of the perpetrators of human trafficking. The Directive applies to all EU Member States in the Baltic Sea region except Denmark. Defining trafficking in humabeings 13

Defining trafficking in human beings 14 Trafficking cases from the Baltic Sea region Next some example cases of trafficking in persons are presented from the Baltic Sea region to outline different types of exploitation encountered by victims. Labour trafficking In 2008-2010 a total of 26 men from Kyrgyzstan where recruited to work at a wood processing plant located in a small town in North-Western Finland. The recruitment was done by a supervisor working at the plant who was originally from Kyrgyzstan himself. He accommodated the men in the basement of his house and at the plant in poor conditions. The men worked long hours without holidays or mandatory overtime compensations and they were advised not to move around the town by the supervisor or be in contact with the local Finns. He also collected the men s bank cards and codes and withdrew most of the wages directly from their bank accounts totalling up to 240 000 euros. The victims were left with around 300-800 euros a month, part of which they sent to their families back home. The supervisor also confiscated the victims passports and stopped them from leaving the country. Moreover, he used threats and violence to control the men and to make sure they would not tell anyone outside about their situation. The Finnish plant owners denied knowing what had been going on and condemned the actions of their employee. The man was convicted for human trafficking, assault and aggravated embezzlement in the first instance court. The judgment was later confirmed by the court of appeal which sentenced him to prison for 3,5 years and ordered him to pay hundreds of thousands of euros in damages to the victims. Sham marriage A 36 year old Latvian woman was promised a job in the UK working with the children of Latvian families. When she arrived in the UK, her passport was taken away and she was married to a Pakistani man. The woman was then exploited and kept as a prisoner for more than a year in Manchester and Birmingham by the man and his associates. In one house, she was kept in a tiny attic bedroom while the man and the rest of his family lived downstairs. The second house had metal bars over the windows and she was not allowed outside alone. The victim s ordeal ended only after she began writing down what had happened to her and managed to tear off a partial address from a piece of mail and rang her mother, who then informed Interpol. The perpetrators were found guilty of human trafficking by the UK Court. Sexual exploitation A number of Belarusian women and girls were recruited in Belarus with the promise of a good, well-paid job in Poland. When the women arrived in Poland their passports were confiscated and they were forced to engage in prostitution. The victims were forbidden from going out and threats of violence were used as means of coercion. The victims were told to work to repay the money that the perpetrator had paid for them and a part of their earnings was collected regularly. The Polish court found that the three Belarusian perpetrators (two men and one woman) took advantage of the economic difficulties and financial problems of the victims, lied to them regarding the real nature of the job offered in Poland and exploited them in forced prostitution. The three defendants were found guilty of human trafficking and other procuring-related offences by the first instance court and later also by the court of appeal and were sentenced to prison for three to four and a half years. Forced begging In July 2012, a Romanian-speaking outreach worker in Oslo noticed that a Romanian woman begging on the streets of Oslo with four other people seemed scared and nervous. After speaking with the woman, the social worker understood that a trafficker controlled the group. Safe housing was provided and the victims were all granted a reflection period. The police started an investigation and identified two suspects men from Romania and Kosovo. The suspects had recruited four men and one woman in Romania by promising them work in Norway. All five agreed to go by minibus to Norway, without any further agreement on payment for the travel. The victims ID cards were removed from them during the journey. In Norway, the two suspects said that they would get back the ID cards upon payment of a total of 1000. They were forced to steal petrol and to beg, and after refusing to steal more, the other suspect struck one of the victims, and they all received death threats. Oslo District Court convicted the two men on several counts of trafficking in January 2015. Forced criminality In 2009, two Romanian men recruited two 16-year-old boys to go with them to Sweden, where it would be easy for them to get jobs. The boys parents agreed to send them to Sweden. The boys flew from Romania via London to Stockholm Skavsta Airport. Upon arrival the boys were forced to steal. The crime was first discovered when the boys stole a car on the day after their arrival and were arrested by the police in Nyköping. The suspicions increased after a few incidents where the boys were arrested for shoplifting, and the police started an investigation into human trafficking. The court of first instance came to the conclusion that the two men should not be convicted of human trafficking. The boys were never under threat or locked up, they had access to a phone, and they never expressed that they needed help from their families or the police. However, the Court of Appeal found enough evidence of human trafficking and sentenced the men to one year in prison and to pay 60000 SEK to the boys in damages. The Court held that that the two men had a decisive influence over the two boys. The boys only spoke Romanian and were in a foreign country with the two older men. The two victims did not have any money and were totally dependent on the older men for support and to find jobs. The fact that the boys might have agreed to steal in the first place was found irrelevant. Defining trafficking in humabeings 15

The starting point for addressing human trafficking at the local level should be based on analysis of the local situation. Local authorities should build their own knowledge and analysis of the features and trends that trafficking and exploitation display in their municipality (i.e. scale, nature, patterns, risks, causes of the crime). This mapping and diagnostic of the situation should provide the basis for designing local interventions including specific measures and/or integrating them into existing policies, programs and services. 16 This process can called conducting a local safety audit on human trafficking. 17 In the following sections it will simply be referred to as a mapping of the local (trafficking) situation on the ground. 3. Mapping the local trafficking The mapping is meant to be a multidisciplinary and participatory process. In conducting this process, municipalities should involve and consult not only different services of their administration, such as social, health, housing, education, employment, youth, child protection departments and municipal police but also reach out to other relevant public institutions, such as police, prosecutors, judiciary, employment and migration services. Additionally, key partners in this mapping phase are NGOs, especially those with expertise on trafficking in human beings or working on migrants rights and violence against women, faith based groups, trade unions and migrant, ethnic and other minorities organisations. Moreover, during the mapping process, municipalities could also consult relevant private sector actors such as recruitment and employment agencies, associations of employers in the hotel, cleaning, construction or restaurant sectors. 18 The rationale for selecting various stakeholders is to involve all those actors that encounter or can potentially encounter exploited and trafficked persons and that could contribute their knowledge of the local community and areas when municipalities are designing and implementing of policies to address human trafficking. Mapping local trafficking situation 16 situation Human trafficking is a global phenomenon, but it also has a local dimension as well as specific implications for local communities in municipalities, which clearly have a responsibility to address exploitative practices in the local community. 15 In mapping the situation, local authorities should look for information on trafficking in human beings available at national level from existing anti-trafficking national coordination and reporting mechanisms and combine it with information from municipal records related to crime, data from social services on vulnerable populations, data from local police and NGOs on trafficked persons, traffickers and existing anti-trafficking initiatives. Overleaf a set of tables provide guidance on questions to consider and actors to involve when conducting the mapping, in particular with regard to: - the identification of populations at risk of trafficking in human beings for sexual exploitation, forced labour, forced begging and criminality; - locations where potential victims and victims might be encountered; - traffickers, enablers and users. In relation to the identification of groups at risk of trafficking for sexual exploitation, it is important to consider what is known about prostitution and persons engaged in prostitution at the local level, local trends, relevant locations both outdoor and indoor, and groups at risk. The mapping should also research which organisations work in this field and provide support and services to women and men involved in prostitution; these organisations are likely to have very precise and specific knowledge also in relation to trafficking. Many different local actors have relevant information but may not always be able to recognise a trafficking situation, yet - if trained - they could help identify and refer to support potential victims of trafficking. These actors include social and health service providers, victim services, as well as private citizens and neighbourhood organisations. Mapping local trafficking situation 17

Mapping local trafficking situation Table 1. Questions to be considered at the local level (mainly in destination countries) Women and men involved in prostitution: How many women/men are known to be engaged in prostitution in your area? What is the demographic profile of these women/men? Where do they come from? What proportion of women/men has a pimp/procurer? What proportion may be victims of international/domestic trafficking? Are there increasing numbers of migrant women working in bars or in the service sector? What is the profile of foreign women/men involved in prostitution and who are their clients? Are the numbers increasing? In which areas of the city do these women/ men live? In which locations are services offered and provided? What policies and services exist to support the women and men involved in prostitution? Migrants (including EU-citizens), irregular migrants, asylum seekers, refugees and foreign students How many foreign students, recent migrants, refugees and migrant women are living in your area? Where do they come from? What are their circumstances and needs (housing, income, languages, work and training)? What is their risk of sexual exploitation? What policies and/or services exist to support them? What are the gaps in services for them, how can they be filled? Populations at risk trafficking for sexual exploitation Key actors who can identify people at risk and encounter trafficked persons NGOs & service providers Social and health services Victim Services Local police Shelters Migrant/Refugee support groups Migrant services Local neighbourhoods Sex buyers Private citizens Source: Adapted from Local Safety Audit Guide: to Prevent Trafficking in Persons and Related Exploitation (2013), 32-34. As regards labour trafficking and other newer forms of trafficking such as forced begging and forced criminality, local actors should consider a number of issues concerning local migration flows and situations of exclusion and marginalisation as a starting point for their mapping. It is important to understand in which sectors migrant workers are employed, what are their terms of employment, what kind of services they use, whether and who are the local actors offering support services. The mapping should pay particular attention to the situation of migrants in an irregular situation especially undocumented who face a higher risk of exploitation; asylum seekers, refugees and even foreign students may also be in a vulnerable position and face risk of exploitation. To the extent possible, data should be disaggregated by gender, age and ethnic background. A number of local actors can identify potential victims of labour trafficking, including different inspection authorities, trade unions, migrant service providers, as well as private citizens and consumers (see table below). Table 2. Populations at risk labour trafficking Questions to be considered at the local level (mainly in destination countries) Migrant workers (including EU-citizens), irregular migrants, asylum seekers, refugees and foreign students How many migrant workers, foreign students and undocumented migrants are living in your area? What industries, jobs are they working in? Where do they live and how do they go to work? Are there any identified trends in terms of newcomers in the municipality? What is the background and demographic profile of this population? What are their working conditions and wages? Are they aware of their rights, do they receive any support and services? What services and policies are needed to provide them with greater protection from exploitation? Key actors who can identify people at risk Labour inspectors Local police Health/fire/tax inspectors Trade unions Social services Medical personnel Public procurement officials NGOs Victim Services Migrant/refugees support groups Migrant communities organisations Recruitment agencies Private citizens Source: Adapted from Local Safety Audit Guide: to Prevent Trafficking in Persons and Related Exploitation (2013), 34-35. Mapping local trafficking situation 18 19

Table 3. Populations at risk forced begging and criminality In countries of origin, the mapping should aim at identifying the relevant groups at risk to be recruited and trafficked at local level. It is also important to map key actors who are working with and supporting these vulnerable groups. Mapping local trafficking situation Questions to be considered at the local level (mainly in destination countries) Are there people begging in your area? What is their background? Is the begging organised and how? Is there someone bringing them into town and coming to pick them up? How much time do they spend begging? Is there someone watching/ controlling? Do they do other activities in addition to begging? Where do the persons begging live? What are the conditions? Are there any support services available? Are there indications of forced criminality in your area, e.g. shoplifting or mobile phone thefts done by populations at risk? Are these persons working and moving in groups within a larger region? What is their background? Are there reports from other municipalities in your region with similar situations of organised begging or forced criminality? Were the people involved previously arrested in other cities for similar crimes? Are the items stolen different than you would expect e.g. women/girls stealing men s razors? Key actors who can identify people at risk Local police Social services Medical personnel NGOs Victim Services Migrant/refugees support groups Migrant communities organisations Church or faith-based organisations Private citizens Source: Adapted from Local Safety Audit Guide: to Prevent Trafficking in Persons and Related Exploitation (2013), 34-35. Table 4. Populations at risk - trafficking for sexual exploitation and labour exploitation (mainly in origin countries) Young people who reside in public care institutions People living in areas with a declining economic situation, especially unemployed persons and persons with loans and credit problems Women/men involved in prostitution Single mothers in a poor economic situation Persons with substance dependence Persons with physical or mental disabilities Minority groups with low level or no national language knowledge Victims of violence Homeless persons Discriminated and marginal groups Countries of origin - Populations at risk - trafficking for sexual exploitation and labour exploitation Key actors who can identify people at risk NGOs & service providers Social and health services Public care institutions Teachers Medical personnel Local police Libraries Shelters Unemployment office Church Companies providing property and maintenance services Private citizens Mapping local trafficking situation 20 21

Mapping local trafficking situation After identifying the specific groups at risk, the mapping should focus on researching local social and economic trends concerning these populations. The next table introduces some of the questions to be considered. Table 5. Countries of origin: Questions to be considered at the local level How many people live under the poverty line in your area? How many unemployed people live in your area? Are there support services available for people in need in your area? How many people are receiving social benefits and other type of assistance in your area? Are there women/men engaged in prostitution in your area or in nearby larger cities? Are there women/men who are/were involved in prostitution abroad? In which areas do the poorest groups of population live? What are the circumstances and needs of people living in areas with poor economic situation? How many people are being regularly treated for substance dependency? How do they live? How many cases of domestic violence are reported in your area per year? What is the profile of victims of physical or emotional violence? Do they receive any social services and assistance? How many people travel abroad in search of employment annually? What is the profile of these people? How do they find employment abroad? What are their working conditions and pay abroad? What industries, jobs are they working in? Another important component of the mapping is the identification of places/locations where vulnerable groups or trafficked persons may be encountered, and of places where exploitation and trafficking is likely to occur. This information can be vital to informing targeted prevention measures such as awareness raising (see Chapter 6 on prevention). The table below provides a list of possible locations to consider in the mapping. Table 6. Locations to be considered relevant (for mapping and for targeted prevention measures such as awareness raising) Transportation hubs: airports, train stations, ferry terminals & ports, bus and metro stations and other locations where migrants may be informally recruited Red light districts or areas known for street prostitution, selling of drugs, counterfeit goods and cigarettes, or begging Shopping malls, public parks or other locations where young people, migrants, or other potentially relevant groups gather and to spend time Homeless shelters or daytime centres targeting vulnerable groups such as street children, people with substance dependency and addiction, ex-prisoners or unemployed persons Centres offering services to migrants, including information centres, cultural centres, language schools Big construction sites where migrant workers are employed Big agricultural farms/areas/regions where migrant workers are employed Libraries or other such locations with free wi-fi and or free access to computer Clinics and hospitals, including global clinics offering services to undocumented migrants, and hospital emergency departments Areas with ethnic shops, market places, ethnic restaurants, internet cafes and telephone shops, cafes and money transfer services where migrants may spend time Educational establishments, especially vocational schools and schools for children with disabilities Social service centres Asylum centres and reception points Consulates and embassies Employment services and recruitment & job placement agencies Mapping local trafficking situation 22 23

Mapping local trafficking situation 24 Municipalities can play an active role also in the prevention of trafficking in human beings through the gathering of information and data about perpetrators at the local level. This information may constitute a useful intelligence source to assist investigation and prosecution of traffickers and exploiters and should therefore be appropriately shared with relevant law enforcement and prosecutorial authorities working on trafficking in human beings. Traffickers operate at the local level, in different locations and contexts, by recruiting, transporting and exploiting victims. They are commonly seen as part of highly organised and powerful criminal networks that span countries and regions and operate swiftly and fluidly. However, traffickers often function as small time operators, drawing on personal and sometimes family relationships. There are various ways in which individuals can be involved in trafficking process. The term traffickers can be used to refer to recruiters, transporters, those who exercise control over trafficked person, those who transfer and/or harbour trafficked persons in exploitative situations, those involved in related crimes and those who profit either directly or indirectly from trafficking, its component acts and related offences. At the EU-level traffickers come from different countries and have diverse national and ethnic backgrounds; however the majority possesses citizenship of an EU Member State. The majority of perpetrators have strong connections to the country of origin of the victim, they tend to recruit and exploit victims of their own nationality. The majority of traffickers are men, however the number of women involved is increasing. Sometimes the line between victim and offender is blurred as former victims in many cases become traffickers when they are forced to recruit others or are offered a respite from direct exploitation by moving up in the hierarchy of the trafficking network. 19 Table 7. Questions to be considered at the local level Traffickers, enablers, users sexual exploitation What is known about the traffickers in your area? What industries exist within your area that may use or enable sexual exploitation? Where are they located? Are there any third party agencies recruiting workers in your area? Who are the enablers/observers of sexual exploitation? How many sex buyers are there in your area? How big is the problem? Gathering information about perpetrators Key actors who can identify people at risk Local police Social and health services NGOs Victim Services Migrant/refugees support groups Taxi drivers Hotel staff Local neighbourhood associations Private citizens What services or programs exist that are targeting the demand side of sexual exploitation? What is the background and demographic profile of this population? What services and policies are needed to reduce demand? Traffickers, enablers, users labour trafficking, forced begging and criminality What is known about people exploiting labour in your city or area? Do you have any information about forced begging and forced criminality? Who are the organisers or who benefit from these activities? Do other municipalities experience the same challenges? Are there mechanisms for exchange of information between municipalities in your country? What industries may use or enable labour exploitation? Who are the enablers/observers of labour exploitation, begging or forced criminality? What services or programs are targeting the demand side of labour exploitation? Are there any codes of ethics for companies? Do local companies monitor their supply chain? Local police Labour inspectors Health/fire/tax inspectors Trade unions Social and health services Public procurement officials NGOs Victim Services Migrant/refugees support groups Taxi drivers Hotel staff Local neighbourhood associations Private citizens Mapping local trafficking situation 25

Finally, the mapping should also involve a component directed at gathering information on what resources are available for municipalities to engage and mobilize, both in terms of services and capacities within their own administration and on the territory of their municipality i.e. from third parties. In this regard, the mapping should be used to develop a map of services available specifically for victims of human trafficking and also other services, which could be relevant for people at risk (e.g. social welfare, employment, health, education, counselling, legal). Another outcome of the mapping should also be the identification of training needs among municipality s frontline operators who may be engaged in the identification of victims and potential victims and in the delivery of support services. If there are no resources available at the local level to conduct the mapping to the scale suggested, one option is to focus on certain areas or types of trafficking which are considered particularly prominent in your area. Another good option is to incorporate human trafficking into existing more general crime prevention or outreach policies and interventions. In the Baltic Sea region many cities and municipalities already conduct local safety audits or have in place urban security plans which focus on actions to improve the safety of certain locations, neighbourhoods or groups. These cities and municipalities could include also a diagnosis of human trafficking issues into their existing or on-going processes. Local anti-trafficking strategies and action plans could then be built upon existing local authorities programmes and policies on relevant and complementary issues such as those addressing social exclusion, violence against women and migrant integration. 4. Identification of victims of trafficking Mapping local trafficking situation Action points for municipalities Conduct a mapping of the local trafficking situation to identify populations at risk, to identify relevant locations and to gather information about perpetrators and facilitators of trafficking. In case of limited or scarce resources, include the diagnosis of trafficking situation into existing crime prevention strategies, or make sure the topic is covered in policies, structures and programmes that address, e.g., social exclusion, violence against women or migrant integration at the municipality level. Gather information on what resources and services are available within your own administration and within the municipality, i.e., from third parties and create a list outlining the services available specifically for victims of human trafficking as well as for people at risk. This can be used to improve identification, assistance and prevention efforts within the local area. Timely and proper identification of victims of trafficking in human beings is of extreme importance when it comes to tackling human trafficking. Identification is the key in protecting potential victims, safeguarding their rights and ensuring that victims receive the assistance they are entitled to. Proper identification of trafficked persons is also a pre-condition for making perpetrators accountable for exploitation and can lead to growing number of criminal investigations and may help disclose other related crimes. Ideally, the proper identification of potential victims can also disrupt the trafficking process before it even starts and thus prevent the exploitation of vulnerable individuals in the first place. 20 Oftentimes local actors are in a better position than central/national authorities to recognise the first signs of human trafficking, given their proximity they are often the first to initialize the chain of assistance and support for the victims. They can also help identify traffickers and other perpetrators. Identification of victims of trafficking 26 27

Who are victims of trafficking? Process of victim identification Identification of victims of trafficking 28 Victims of trafficking originate from all over the world and present a variety of backgrounds and experiences. People who are physically, psychologically or economically vulnerable and who do not have enough inner resources or external assistance and support are at risk to become victims. In contrast to the vulnerability of victims it is the perceived or real power that traffickers possess and/or wield enabling them to take advantage of the persons dependent status or insecure state which results in an emotional, economical, physical or psychological power imbalance between the victim and the perpetrator. This imbalance can be caused by several factors, such as family circumstances, personal relationships or employment relationships. Many factors can also render the person insecure, which may be taken advantage of by the traffickers. These factors are outlined below: young age, serious illness, substance dependency, serious illness or substance dependency of a close family member, difficult economic situation, homelessness, psychological state, physical or mental disability, previous traumatic experiences, e.g., previous sexual exploitation or prostitution, and status of being a foreigner/asylum seekers/refugee, gender identity or minority status Victims of trafficking may have different residence statuses. They can be undocumented (irregular) migrants, but they can also just as well be EU-citizens or third country nationals with valid residence permits or nationals of your country, who end up in situations of trafficking and exploitation. 21 Indeed, according to Eurostat (2014), at the European level as many as 65 per cent of registered victims of trafficking are EU-citizens. 22 At the same time it is important to remember that profiling potential victims and risk groups should not lead to generalizations and discriminatory policies, approaches and attitudes. Rather than focusing only on a person s migration status, the monitoring and enforcement activities should aim at providing information and protecting the fundamental rights of migrants and other vulnerable persons and at preventing their abuse and exploitation. 23 Irregular migrants at risk to be trafficked Often irregular migrants face the highest risk of exploitation because of their vulnerable, even clandestine status which is then exploited by traffickers and other criminals, including in the formal or informal job market. Usually undocumented migrants find it very difficult to contact authorities or seek help from governmental institutions because they are afraid of deportation. 24 This lack of trust results in problems of identification which is exacerbated by lack of awareness of trafficking in the first place. Therefore cooperation among NGOs, local authorities and other local actors is of utmost importance when it comes to building trust among vulnerable populations and groups at risk. As a rule, identifying a trafficked person is a complex and time consuming process. In principle the identification is actually a two stage process: the first stage is to assess whether there are reasonable grounds to treat someone as a victim, and the second stage is to make a decision on victim status. Sometimes it takes weeks for a person to develop enough trust in the authorities or social services to be able to speak out and share their experiences with others. At the same time, the identification procedure should be carried out quickly and accurately because it grants the victims access to necessary assistance in the first place. Therefore it is important to ensure that frontline officials and actors are aware of the most important trafficking indicators and can identify victims and set the chain of assistance in motion. When a front-line officer has reasonable suspicion that a person is a victim of trafficking she or he should immediately refer the person to assistance and support services. Some countries have in place a national referral mechanism, a help-line or other mechanism to activate the chain of assistance which should be followed (see also chapter 5). A victim-centred human rights approach calls for informing victims about their rights. Some victims may not even realize that their rights have been violated. Indeed, trafficking victims seldom identify themselves as victims and rarely seek assistance under the trafficking label. Instead they may encounter authorities or local actors when they are using or accessing different existing services at the local level (e.g., visiting a doctor or renewing their residence permit or other documents). Local authorities can also encounter victims because of some irregularity in their work place, because of a fire alarm, an inspection or other such occurrences. VICTIMS OF TRAFFICKING ARE SELDOM IN A SITUATION WHERE THEY WOULD IDENTIFY THEMSELVES AS VICTIMS, BECAUSE THE PERSON IS: Unwilling to be labeled as a victim or stigmatized Unaware of her/his rights and the concept of human trafficking or that her/his experience constitutes human trafficking Unaware of the assistance granted to a victim of trafficking Having feelings of guilt or shame about her/his exploitative situation Afraid of retributions to her/his family or her/himself Afraid of imprisonment, deportation or monetary fines Dependent on the abuser ( Stockholm Syndrome ) Regarding her/his situation as better than her/his previous (unemployment, extreme poverty, violence, conflict and similar scenarios) Identification of victims of trafficking 29